Lecture 8: Spatial Planning for Disaster Risk Reduction Dr. Estuning Tyas Wulan Mei (UGM) 2019 ProSPER.Net Young Researchers' School 6 March 2019

1. Spatial Planning for Disaster Risk
Reduction
Dr. Estuning Tyas Wulan Mei
Faculty of Géography, Universitas Gadjah Mada, Indonesia
estu.mei@gmail.com / estu.mei@ugm.ac.id

2. • Estuning Tyas Wulan Mei
• Lecturer at the Faculty of Geography, Universitas Gadjah
Mada, Indonesia
• 2013 – PhD Géographie, Université Paris 1 Panthéon – Sorbonne (Dir. :
Pr. Franck Lavigne)
• Sujet : Gestion des évacuations lors des crises volcaniques. Etude de cas du
volcan Merapi, Java, Indonésie
• 2008 – Master Geo-Information for Spatial Planning and Risk
Management, Double Degree M.Sc Programme between Universitas
Gadjah Mada, Indonesia and University of Twente, the Netherlands
• 2006 – Undergraduate/Bachelor, Regional Development Program
Study, Faculty of Geography, Universitas Gadjah Mada, Indonesia
https://scholar.google.ca/citations?user=ZvZdZIQAAAAJ&hl=en
https://www.scopus.com/authid/detail.uri?authorId=55018646400
https://orcid.org/0000-0003-3814-9014

3. Planning or plan?
Planning
• Process of thinking and
organizing the activities to
achieve a goal.
• Planning refers to the
process of deciding what to
do and how to do it
Plan
• Results or products of a
certain planning activity.
Planner(s)
Planners do not make decisions themselves; rather, they support decision-makers
(managers, public officials, citizens) by coordinating information and activities.
Their role is to create a logical, systematic decision-making process that results in the
best action

4. Planning
• Peter Hall (1992):
• ….'is concerned with deliberately achieving some
objectives, and it proceeds by assembling actions into
some orderly sequence’.
• Ernest R. Alexander (1986):
• “Planning is the deliberate social or organizational
activity of developing an optimal strategy of future
action to achieve a desired set of goals, for solving novel
problems in complex contexts, and attended by the
power and intention to commit recourses and to act as
necessary to implement the chosen strategy”

5. Planning
• Diana Conyers and Peter Hills (1984):
“…is a continues process which involves decisions, or
choices, about alternative ways of using available
resources, with the aims of achieving particular goals at
some time in the future”.
• 4 main elements of planning:
• Decisions or choices
• Resource allocations
• Goal(s) achievement
• For the future

6. Aspects of Planning
Planning: Role
and place in
public
decision
making
Planning steps
Spatial levels
Planning
spheres
Operational
fields
Administration
Time horizons
Styles of planning
Centrally-planned economies
Market-based economies
Mixed economies
Project planning
Sectoral planning
Macro-economic planning
Integrated area planning
Short-term planning
Medium-term planning
Long-term planning
Conception
Preparation
Realization
Evaluation
1. Blueprint planning
2. Process planning
3. Comprehensive planning
4. Jointed Vs. Disjointed Incrementalism
5. Functional planning
6. Normative planning

7. Planning Principles
• Good planning requires a methodical process that clearly
defines the steps that lead to optimal solutions.
(Preston, 2012)
Plan-
ning
Compre-
hensive
Efficient
Inclusive
Inform-
ative
Inte-
grated
Logical
Trans-
parent
all significant options and
impacts are considered
the process should not
waste time or money
people affected by
the plan have
opportunities to be
involved
individual, short-term decisions should
support strategic, long-term goals
results are understood by
stakeholders (people
affected by a decision)
each step leads to the next
everybody involved understands
how the process operates

8. Spatial Planning
• A strategic direction for the development of a given geographic
area, states the policies, priorities, programmes and land
allocations that will implement the strategic direction and
influences the distribution of people and activities in spaces of
various scales.
• Spatial planning systems refer to the methods and approaches
used by the public and private sector to influence the
distribution of people and activities in spaces of various scales.
• Spatial plans may be developed for urban planning, regional
planning, environmental planning, landscape planning, national
spatial plans, or spatial planning at the Union level. (noted:
some countries used the term urban planning, regional
planning, land use planning).

10. Spatial Structure
Urban System
Transportation
System
Energy System
Telecommunica
tions System
Water
Resources
System
the arrangement of public and private space in cities and
the degree of connectivity and accessibility

11. Structure

12. Spatial Pattern
Protected Area
• area that provides protection for
subordinate areas : protected forests,
peatlands, water catchments
• local protection area : borders of
beaches & rivers, around lakes /
reservoirs, urban green open spaces
• conservation areas: nature reserves,
nature conservation, hunting parks,
coastal conservation and small
islands
• geological protected area : geological
nature reserve, groundwater
protection
• other protected areas : biosphere
reserves, ramsar, cultural heritage,
germplasm, animal refuge,
mangroves
Cultivated Area
• production forest allocation area;
• forest reserve area;
• agricultural allocation area;
• fisheries allocation area;
• mining allocation area;
• industrial allocation area;
• tourism allocation area;
• residential area; and / or
• other allocation areas.

13. Disaster and Spatial Planning
Picture: PU
Picture: LePost

14. Disasters are different

15. Eachdisasterisunique
http://studioprotector.org/
(Tilling, 2008)
Uncertainty

16. However,whenthereisaction,casualties
and/ordamagesmightbereduced
DISASTER
« Disaster Management »
Disaster risk
management
Crisis
management
Post-crisis
management
Pre Syn Post
SPACE
TIME
Response
Reconstructi
on
Rehabilitatio
n
Mitigation
Preparednes
s

17. Concept of DRR
NATURALEVENT
No harm to
humans
HAZARD(H) The
probability
of
occurrence
of certain
natural
disaster
VULNERABILITY(V)
The degree
of loss for
each
element in
the event of
disaster
RISIKO(R)
Potential
losses
caused by
disaster
Before we discuss about the relation between Disaster
management and Spatial Planning….
1
(UNDRO, 1992)
Risk = Hazard x Vulnerability
Capacity

18. Planning
CYCLE
Disaster
Planning= cycle
Disaster = cycle
Planning = cycle

19. PLAN OF SPACE USE OF SPACE
CONTROL OF SPACE USE
SPATIAL PLANNING (INDONESIAN TERM)

20. SchemeofSpatialPlanDocumentStages

21. Sumber: Schramm, et al.(1991)

22. Spatial Plan & Disaster Management
• Law No. 26 of 2007
The physical condition of the NKRI area is vulnerable to disasters,
therefore disaster mitigation-based spatial planning is needed
• Law No. 26 of 2007
Disaster mitigation is a series of efforts to reduce disaster risk, both
through physical development (structural mitigation) and awareness
and capacity building in the face of disaster threats

23. Spatial planning = disaster risk reduction
< Risk
Capacity
(ies)>
Hazard (s)
<
Vulnerability
(ies)<

24. Indonesian Spatial Planning
Law
• No. 26 of 2007
• No. 1 of 2018
Ministrial
Regulation
• Public Work Ministrial Regulation No. 21 of 2007
• Disaster prone areas of volcanic eruptions and earthquakes
Ministrial
Regulation
• PU No 22 2007
• Disaster prone area of landslide
Plan
UseControl
Including the HAZARD elements (KRB) with the aim of reducing RISK

25. Unfortunately….
• Indonesia
Sumber: Small, et al., 2001
: volcano

26. Indonésie
5.120 km (3.181 mi) from East to West
1,760 km (1,094 mi) from North to South
Area: 1,916,862 km2 (741,052 mil2).
Coastal area: 54,716 km (33,999 mil)
16,056 islands
- / + 261 890 900 inhabitants
Population growth: 1.4%
Density of population: 9 - 15,624 inhabitants / km2

27. Several time zones

29. Geomorphology
Volcanic Structural
Denudational Karstic
Glacial Aeolin
Fluvial Coastal

30. Océan Indien
Plaque Indo-australienne

31. Volcanic risk
 120 active volcanoes including:
 1 in high surveillance (level 4)
 4 to level 3
 15 at level 2
https://magma.vsi.esdm.go.id

32. Volcanic risk

33. Volcanoes in Indonesia
Subduction phenomena

34. Earthquake risk

35. Earthquake risk

36. Faults and earthquakes

37. Tsunami risk

38. 1) Plan of space
• HAZARD kawasan rawan bencana
• Too many bureau/institutions/agencies  different methods,
different maps
• BNPB,
• Kemen PU,
• Kemen ESDM,
• Bakosurtanal
• Universities
• NGOs
• Etc.

39. BNPB
Event map, danger: Floods, tsunamis, earthquakes, cyclones, forest fires, etc.
74 Kabupaten/Kota belum punya BPBD (Data Maret 2015 – Saat Rakornas BNPB)
52 kabupaten dan 22 kota

40. Ministry of Public Works
Disaster Information Map: Hurricanes, floods, tidal waves, earthquakes, eruptions, droughts, conflicts,
landslides

41. Geological Agency
Map of Geological Disaster Areas: Volcanoes, Earthquakes and Tsunamis, Movement of land.

42. Geospatial Information Agency
Disaster Index Map: Floods, earthquakes, eruptions

43. Meteorology, Climatology, and Geophysical
Agency
Potential maps and / or events: floods, tsunamis, earthquakes, cyclones, forest fires, etc.

44. How about the spatial planning maker?
• Do they have any hazard map(s)?
• How they may get the maps?
1. ‘Primary’ data  how they create the maps?
• Preliminary report?
• Data and analysis report?
• Final report?
2. Secondary data 
• Which map(s) they use?

45. Preliminary Report Data and Analysis Report Final Report
Preliminary Preliminary Preliminary
Method and Work
Plan
General Area Description Potential, Problem, and Area
Development
Profile Area Preview Spatial Plan Evaluation Strategic and Policy
Schedule
Implementation
Policy Development and
Sectoral
Spatial Structure Planning
Schedule
Mobilization
Analysis Pattern Structure Planning
Reporting Determining Strategic Area
Referrals space utilization
Provision of spatial Control
Right, Duty, and community
involvement
Closing
Spatial Planning Report Content

46. 1) Plan of space
• HAZARD kawasan rawan bencana
• Sync and valid
• Reduce the uncertainty of spatial problem
• Reduce the misinterpretation of KRB
• KRB classes are different, but similar
• Volcanoes  only 51 volcanoes having “published” KRB map
• Another classes (PVMBG):
• Type A volcano: minimum one recorded eruption since 1600
• Type B volcano: no eruption recorded since 1600
• Type C volcano: no information
Hazard level Ministry of Public Work Volcanological Agency
High Tipe C KRB III
Medium Tipe B KRB II
Low Tipe A KRB I

47. Plan of space
• One map policy  to be used by all institutions
• Horizontal and vertical coordination (national, regional,
local).
• Hazard map is primordial, but it has to be valid and sycn.
• Hazard map must be used as a basis to analyze every
aspects in spatial planning process (the latest law in spatial
planning).
Consideration of aspects of threats (disaster-prone areas) in
spatial planning is very important to determine spatial planning
and disaster mitigation devices.

48. 2) Use of space
• The problem of “land/spatial use” is closely related to the
“spatial plan/planning”.
• Single basic reference reduce misinterpretation 
reduce problem on land/spatial use

49. 2) Use of space
• Example: Merapi Volcano
• Volcanic Hazard Map
• Clearly states that: Highest Hazard Zone or KRB III (Legend) is not
allowed to be used as settlement.
“….Oleh karena tingkat kerawanan yang tinggi, kawasan (KRB
III) ini tidak diperkenankan untuk hunian tetap…”
“….Due to its high vulnerability, permanent settlement in
Hazard Zone III is not allowed….”
• PerDa Sleman No 12 2012 RTRW
“Kawasan rawan bencana Merapi III adalah kawasan yang letaknya dekat dengan sumber
bahaya yang sering terlanda awanpanas, aliran lava, guguran batu, lontaran batu (pijar)
dan hujan abu lebat. Oleh karena tingkat kerawanan yang tinggi, kawasan ini tidak
diperkenankan untuk hunian tetap.”
"Merapi III disaster-prone areas are areas that are located near sources of danger that are
often hit by pyroclastic flows, lava, rock avalanches, bombs, lapilis and heavy ash rain.
Due to its high level of vulnerability, this area is not permitted for permanent occupancy. "

50. Volcanic geomorphology
(BPPTK, 2006)
Photo: NatGeo

52. Hazard Map Merapi 2006

53. Hazard Map Merapi 2010

54. • Peraturan ini sepertinya tidak mudah ditegakkan
Different scale 
difficulty of the
law application

55. Use of space
• The use of disaster-prone areas must be carried
out together with measures to reduce the level of
vulnerability of the population.
To reduce risk, if a threat already exists, it is necessary
to reduce vulnerability and increase capacity

56. 3) Control of space use
• Control of potential disaster space use is carried out by looking at
the consistency between the use of space and the regional spatial
plan
• Some problems:
• Conflict of interest
• i.e. Highest hazard zone 
• Settlement or non-settlement
• Evacuation routes and zones vs. Sand mining routes
• Clearly stated in the Regional Law (Perda Sleman No. 12
year 2012 act 73)
• Activities that have the potential to damage supporting
infrastructure and facilities on the disaster evacuation
routes and spaces are not permitted
• Different points of view
• Philosophie of Living in Harmony  with nature or with
disaster?

57. Reluctant to relocate:
Engagement with the land of birth
There is no evidence of pyroclastic flows (only ash rains)
(Suroto - Kalitengah Lor, Desa Glagaharjo, Kecamatan Cangkringan)
(Harian Jogja, 2 September 2013, ZONA BAHAYA MERAPI Pilih Bertahan, 1.000 Warga KRB III Minta Fasilitas )
Kawasan Ra di-Bantu
KRB = Kawasan Rawan Bencana
(Hazard Zone)
Local population change this term into
Kawasan Ra di-Bantu (Not
assisten/helped area)

58. Sumber: KRJogja, Nov 2013
Local newspaper KR (10/11/2013)
stated that in 2013, 41 billions IDR
were given to maintain the
evacuation routes, while in 2014,
30 billions IDR were also given for
the same reason in Klaten
Regency.

59. PLAN OF SPACE
USE OF SPACE
CONTROL OF SPACE USE
Identification of Hazards
H 
V  C ↑
Increasing Capacity
Minimizing Vulnerability
R 
Disaster risk
Disaster aspects, be they hazards, vulnerabilities, capacities or risks, have their
respective roles that are interrelated in disaster-based spatial planning.

60. What did we learn from the past
experiences?

63. Earthquake, Lombok

64. 29 juillet
6,4 SR
5 août 6,9
SR
9 août 5,9
SR
9 août 6,0
SR (11.10)
9 août 7,0
SR (21.56)
25 août
5,5 SR
> 585 secousses signalées
A series of earthquake in Lombok
• > 550 personnes décédées
• > 7.000 personnes blessées
• > 400.000 personnes déplacées
• > 70.000 bâtiments détruits

65. Spatial plan: tourism sector
• The tourism sector accounts for 60%
of the district's total initial revenue
(PAD) à West Nusa Tenggara (NTB)
(+/- 275.000 euros)
Photo: Tempo (2018)
Masse evacuation in a port of an island of Lombok (Gili
Trawangan)
 Relief is not well organized
 Lack of transportation
 The panic of tourists
(summer vacation period)
 Hundreds of mountaineers
were trapped in the
caldera of Rinjani volcano
 Those who stay are mostly
residents and expatriates
 Tourism Crisis Center
established by the
Indonesian Government

66. • Sulawesi
• Kasih peta Indonesia, lalu zoom ke Sulawesi

67. Max Carl Wilhelm Weber
(zoologist)
Siboga expedition

68. Diversity of Indonesian fauna

69. Diversity of indonesian plants

70. Earthquake, tsunami and liquifaction in
Sulawesi
Source: Natawidjaja & Daryono (2015)
19 tsunami have been
recorded since 1900

71. Central Sulawesi
(Sopaheluwakan et al , 1995)

72. City of Palu
• The capital of Central
Sulawesi Province.
• > 342,000 inhabitants
• The Sultanate of Gowa (XIII
- XVII centuries), then the
Kingdom of Palu (XVII -
XIX centuries)
• The city began to develop
after the Second World
War
• More and more
immigration from Java
(transmigration in the
years 1970-1980)
Le pont jaune (symbole de la ville)

73. Earthquake on 28 september 2019
Earthquake
Tsunami
Liquifaction
Bilan:
• > 2.100 dead people
• > 4,500 people injured
• > 250,000 displaced people
• > 60,000 buildings destroyed
Le week-end d’un grand événement
régional: Festival Pesona Palu Nomoni
Source: BNPB (2018)

74. Séisme
Source: BNPB

75. Source: ZonaSultra (2018)
Séisme
Tsunami
Complexe de résidence (Balaroa) construit dans
les années 1980 (le premier complexe de
résidence financé par l’Etat)

76. Tsunamidanslecentreville
Source: BNPB

77. Tsunami vu du ciel
Source: BNPB

78. Liquifaction
Source: BNPB

79. Toponymy - local wisdom for DRR
• The name of the city (Palu) carries a
definition of the land raised -
Topalu'e (Kaili language)
• Bombatalu (three destructive ocean
waves)
• Linu (the earthquake)
• Nalodo (buried under the mud)
that describes the liquefaction
event
Balaroa and Petobo events leave us
important notes: methods of
disaster mitigation and regional
space management.
Balaroa avant et après le tsunami

80. • Kembali lagi ke Java

82. • Large eruptions
of the years 416
or 535 and 1883
(> 36,000
deaths).
• The archipelago
is part of the
Ujung Kulon
National Park
(UNESCO World
Heritage Site)
Krakatau (and Anak Krakatau) Volcano(es)
Foto: tempo (2018)

83. Krakatau: volcanic eruption & tsunami

84. Foto: BNPB(2018)

85. Événement du tsunami
Source: BNPB(2018)
End of year; School vacation; in a tourist area that attract a lot of local tourists from big cities
around (Jakarta, Bandung, etc.)

86. Source: BNPB

88. • Ash Falls
• Pyroclastic Flows and Surges
• Debris Avalanches
• Lava Flows
• Lahars
• Geothermal Eruptions

89. Volcanic hazard map for Mount Taranaki
Traditional
Knowledge
Monitoring of
Volcanic Hazards
Warning Systems
for Volcanic
Hazards

91. Land use zoning map for areas around Mount Usu (adapted
from Nakao, 2005).

92. Volcanic hazard map of the Okataina Volcanic Centre (in Nairn,
2002 and adapted from Scott & Nairn, 1998).

95. Specific options that could be applied by land use planners
within plans and policy statements include:
• Avoiding new development in high volcanic risk areas, especially in localities that are not
already developed. This concept is reflected in the Mt. Usu case study, where development in
the most destructive volcanic hazard areas has been prohibited. Additionally certain types of
development (e.g., essential or hazardous facilities and covered assemblies) have been
prohibited in lahar and pyroclastic flow zones in Pierce County;
• Restricting development or permitting only low density development in already developed
hazardous areas to minimise the number of people residing in volcanic hazard areas. Pierce
County’s standards reflect this concept, whereby development is required to be low-density in
certain lahar hazard areas;
• Using volcanic hazard-specific criteria for assessing consents in volcanic hazard areas. For
example, a local authority may require that for a consent to be granted in a rural area subject
to volcanic hazards, the water supply must be able to be covered in the event of ash fall.
• Siting and where necessary relocating key facilities and critical infrastructure out of hazardous
areas;
• Incorporating specific urban design measures to mitigate volcanic impacts, for example, the
effects of ash falls, as seen in the urban design example from Kagoshima;
• Taking proactive steps to ascertain how to dispose of volcanic debris after an eruption
(Johnston et al., 2009); and
• Planning for other land use recovery aspects. In a general sense this requires considering
what the effects of an eruption might be, how the use of land could be improved after an
event, and what steps might be taken before an event to ensure such improvements can be
made (Becker et al., 2006).

96. Disaster aspects, be they hazards, vulnerabilities, capacities
or risks, have their respective roles that are interrelated in
disaster-based spatial planning (plan of space, use of space,
control of space use)
Even though Indonesia has continuously experienced
different natural disasters, each event brings a lesson
learned  used to improve risk and crisis management in
Indonesia or around the world
Conclusion

97. Thank you for your attention…